Summary:
Northern Ave Properties LLC is requesting approval of a Minor General Plan Amendment and Rezone to facilitate the development of a 72-unit multi-family residential development on a 5-acre infill site, located at the northeast corner of 87th Avenue and Northern Avenue.
Site Location and Area Context:
Contextually, the site is one of several long and narrow infill parcels situated along Northern Avenue. At approximately five (5) gross acres in area, the site is unusually long and narrow (166.47' wide x 1214' long) with limited frontage along Northern Avenue. Abutting the site to the north is a 330' wide SRP overhead powerline corridor. To the east, the site shares a property line with the Brighton Charter School, which neighbors StoreAmerica Self Storage further east. Across Northern Avenue in Glendale is the single-family residential community of Palermo. Across 87th Avenue to the west is the Summersett Village subdivision.
Development Proposal:
The applicant is seeking a Minor General Plan amendment and Rezoning of approximately 4.7 acres to facilitate a 72-unit multi-family community. The development would consist of five (5) two-story buildings, comprising 48 one-bedroom units and 24 two-bedroom units. As a result of the narrow street frontage available along Northern Avenue, access will be limited to controlled points along 87th Avenue. The proposed two-story building height will be separated by a collector roadway, street frontage landscaping, and approximately 133 feet from the nearest residential property line, or approximately 169 feet to the nearest residential house and the proposed apartment building. The conceptual plans contemplate two (2) main driveways located across from the subdivision entryway along Royal Palm Road and Manzanita Drive. A third driveway proposed at the north end of the property was proposed in response to feedback received from the school, to serve as an additional access to the school through the site.
Minor General Plan Amendment:
As with any request to amend a General Plan land use category, is important to note that staff evaluates the appropriateness of the amendment not only against the physical features of the site, but also the availability of infrastructure around the site, the needs of the community, the development and character of the area, and for compatibility with the City Council priorities which function as a proxy for the will of the citizens.
The subject site has maintained a land use designation with an associated density range between two (2) to five (5) dwelling units per acre since the property was annexed in 1982. Over the past 40 years the area surrounding the site has developed, and the site has remained vacant. The applicant is instead seeking an Urban Residential Land use designation (12+ dwelling units per acre) as an alternative land use designation to serve as a transition between the school and Summersett Village on the west side of 87th Avenue.
In review of the existing conditions of the site, there are a number of physical constraints that severely limit the viability of single-family residential and commercial at this location. With regards to single-family, the subject site is approximately 165 feet wide and requires a 35 feet half-street roadway dedication. After dedication, the resulting parcel depth would measure slightly longer than a typical residential lot depth, and limited ability to provide meaningful community amenities for future residents. Additionally, should traditional single-family residential homes be develop, each of the 10-25 homes would likely seek their own driveway on to 87th Avenue, thus creating various vehicular movement conflicts, resulting in a condition not supported by the city’s current access management guidelines. In contrast, a multi-family development would arguably provide a better residential development options with controlled points of access along 87th Avenue, while still maintaining a similar character within the area. With regard to commercial viability, the site has limited visibility from Northern, narrow parcel depth, and access is limited to 87th Avenue. As such, the amount of commercial that could be supported would be significantly less than similar zoned parcels in the area, as discussed more in depth below. These factors have contributed to the commercially zoned parcel remaining vacant for over four decades. In contrast, the amendment to Urban Residential allows for a housing product that adapts to the site constraints while remaining in character with the surrounding area. Thus, the request provides a good transition between existing uses, it expands housing opportunities in the area, and as such, advances the goals and policies of the General Plan.
Rezoning:
Despite having a residential land use designation, the site is zoned Convenience Commercial (C-1). In instances where land use designations and zoning districts differ, the development rights of the property follow the zoning district development standards. Despite having the ability to develop with commercial use for the past 40 years, the site has remained vacant.
The C-1 District is intended to accommodate neighborhood-scale retail and service establishments that provide the incidental daily necessities for the local residential areas. As with any commercial development, any future commercial use would be required to comply with typical constraints such as applicable right-of-way improvements, building setbacks, access restrictions, parking requirements, drainage, and refuse requirements. Given the existing size and dimension of the site, once these standard requirements are placed on a parcel, the potential amount of commercial space supported at this site is likely to be considerably less than similar zoned parcels. Furthermore, the lack of direct access to Northern Avenue, and the limited visibility to the main thoroughfare is seen as a deterrent to end-users. Given the evolution of surrounding land uses, the community’s needs, and changing market conditions, the applicant argues that C-1 is no longer the most appropriate use for the property (Exhibit 2). Instead, the applicant is seeking to rezone the property to Multi-Family Residential (RM-1). The intention is to provide a compatible transition use between the adjacent school and the collector roadway (87th Avenue).
The Multi-Family Residential (RM-1) Zoning District is a district intended to fulfill the need for multi-family residences or attached single-family residences which are compatible with abutting single-family residential districts. The proposed RM-1 development standards mirror the existing C-1 development standards, while generating less traffic and providing a residential disposition. As outlined in the development proposal, the applicant seeks to provide ample separation between the single-family residential development to the west and apartment buildings. An additional land use buffer is furthermore provided between apartment buildings and the adjacent school to the east. As a result, staff finds the proposed height, character and development standards to be compatible with area.
Public Engagement Process:
The application was properly noticed pursuant to the Peoria Zoning Ordinance, which includes notification to all property owners within 600 feet of the site and registered HOAs within one (1) mile, posting of a sign on the site, and placing an ad in the Peoria Times prior to the Public Hearing.
Public Outreach:
There was a neighborhood meeting for this project held on April 28, 2025, at 6:00 pm. Approximately nine (9) residents, in addition to the Principal of Brighton Charter School, city staff, and the applicant team were present at the meeting. Several neighbors identified concerns with the proposed general plan amendment and rezoning request. The primary concerns from the residents were traffic, perceived impact to property values and crime levels, density, privacy levels for Summersett residents located to the west of the site, student access through the site, and potential overflow parking along 87th Avenue.
In particular, residents raised safety concerns related to the Northern Avenue and 87th Avenue intersection, pedestrian safety for students between Summersett and Brighton Charter School. After the neighborhood meeting, the applicant modified the layout to include a vehicular connection to Brighton. The proposed site plan layout exceeds parking requirements and provides ample separation between the proposed building and existing residential homes. Where mitigation measures were appropriate or possible, the applicant has provided a response on how they will address the areas of concerns within the Citizen Participation Report.
Support / Opposition:
To date, the City has received two (2) letters of opposition and one (1) letter of inquiry as shown in Exhibit 2 (Planning and Zoning Staff Report - Exhibit 9)